DRAFT NATIONAL NON-MOTORISED TRANSPORT POLICY
Transport, the heartbeat of South Africa’ economic growth and social development
1
DRAFT NATIONAL
NON-MOTORISED
TRANSPORT POLICY
Transport, the heartbeat of South Africa’s economic growth and social development
www.transport.gov.za
DRAFT NATIONAL NON-MOTORISED TRANSPORT POLICY
Transport, the heartbeat of South Africa’ economic growth and social development 2
REPUBLIC OF SOUTH AFRICA
DRAFT NATIONAL
NON-MOTORISED TRANSPORT
POLICY
December 2008
DRAFT NATIONAL NON-MOTORISED TRANSPORT POLICY
Transport, the heartbeat of South Africa’ economic growth and social development 3
MINISTER’S FOREWORD
For the past few years the Department of Transport has highlighted the use of non-motorised
transport during the October Transport Month activities. This has been done with the full
knowledge that some of our people, especially in rural areas, live this experience daily and
sometimes throughout their lives.
This Non Motorised Transport Policy is one of the Department of Transport’s interventions
towards reversing challenges of accessibility and mobility. This is indeed a turning point in
our country, particularly in our bids and efforts to include and formalize Non- Motorized
Transport within our integrated transport system. The intention to develop the Non-Motorised
Transportation policy emanate from one of the resolutions of the International Non-Mortised
Transportation Conference that took place in Midrand at Gallagher Estate in February 2007.
This Non- Motorized Transport policy has been developed to cater for the broader spectrum
of our population by providing alternative transport modes such as Cycling , Animal Drawn
Transport and Walking. Through this policy, the Department would intervene towards
addressing challenges of accessibility and mobility and eventually putting Non-Motorised
Transport where it belongs i.e. as a recognised mode of transport.
The notion that Non Motorised Transport is an add-on, as opposed to being a fully acceptable
mode of transport must be defeated. The issue of Non Motorised Transport such as animal
transportation is not only a rural but also an urban issue in so far as the acceptance, again, of
this mode of transportation is concerned.
This policy advocates for optimal use of Non-Motorised Transport and bridging the economic
and social gaps between urban and rural areas or first and second economies.
We as a Department really acknowledge that a policy document on its own will not be a
magic wand for the reversal of the distortions that exist between urban and rural communities.
However, the vigour with which all stakeholders will engage and promote non motorised
transportation modes will determine the success of this policy now and in the future. The
policy document highlights some of the non-transport solutions that can be adopted to solve
transport challenges.
The importance of this policy and its benefits to the future generation of this country cannot
be overemphasised. Through non motorised transportation we are ensured an opportunity to
improve quality of lives, energy conservation and a safe sustainable environment for all future
generation to come.
J T RADEBE MP
MINISTER OF TRANSPORT
DRAFT NATIONAL NON-MOTORISED TRANSPORT POLICY
Transport, the heartbeat of South Africa’ economic growth and social development 4
ACKNOWLEDGEMENTS
Council for Scientific Research
South African Bureau of Standards
Tracka-Trekka
Swift Cycles
Sunset Cycle Works
Bicycle Empowerment Network
Society for the Prevention of Cruelty to Animals
South African Post Office
Kgalakgadi Non-Motorised Transport Committee
Carthorse Protection Service
Intersite
Safe Passing Organisation
University of KZN
VKE Consulting Engineers
Stewart Scott Int.
South African National Road Agency Limited
Road Traffic Management Corporation
Pedal Power Association
Departments of Public Works
National Treasury
Department of Agriculture
City of Joburg
City of Tshwane
South African Local Government Association
Department of Social Development
Nelson Mandela Bay Metro Municipality
DRAFT NATIONAL NON-MOTORISED TRANSPORT POLICY
Transport, the heartbeat of South Africa’ economic growth and social development 5
TABLE OF CONTENTS
MINISTER’S FOREWORD................ 3
ACKNOWLEDGEMENTS ................. 4
EXECUTIVE SUMMARY.................. 6
CHAPTER 1........................................ 9
1 INTRODUCTION ....................... 9
1.1 SITUATIONAL ANALYSIS. 10
1.2 STATUS QUO....................... 11
1.3 LEGISLATIVE AND POLICY
CONTEXT ........................................ 12
CHAPTER 2...................................... 15
2 POLICY VISION AND MISSION,
STRATEGIC OBJECTIVES AND
GUIDING PRINCIPLES................... 15
2.1 VISION ................................. 15
2.2 MISSION............................... 15
2.3 STRATEGIC OBJECTIVES.. 15
2.4 GUIDING POLICY
PRINCIPLES .................................... 15
CHAPTER 3...................................... 18
3 NON-MOTORISED TRANSPORT
POLICY STATEMENTS .................. 18
3.1 INSTITUTIONAL
ARRANGEMENTS AND
GOVERNANCE ............................... 18
3.2 ADT POLICY
STATEMENTS… ............................. 21
3.2.1 REGULATION.................. 21
3.2.2 INFRASTRUCTURE......... 21
3.2.3 TRANSPORT PLANNING 22
3.2.4 TECHNOLOGY ISSUES .. 23
3.2.5 ANIMAL HEALTH AND
WELFARE........................................ 23
3.2.6 SAFETY ISSUES .............. 24
3.2.7 ENVIRONMENTAL
ISSUES… ......................................... 25
3.2.8 FUNDING ......................... 25
3.2.9 SOCIO-ECONOMIC ......... 26
3.3 CYCLING POLICY
STATEMENTS................................. 29
3.3.1 REGULATION.................. 29
3.3.2 INFRASTRUCTURE......... 29
3.3.3 TRANSPORT PLANNING 30
3.3.4 SPECIFICATION AND
STANDARDISATION...................... 31
3.3.5 LOCAL GOVERNMENT
CAPACITY .......................................31
3.3.6 SAFETY ISSUES...............32
3.3.7 ENVIRONMENTAL
ISSUES… ..........................................33
3.3.8 FUNDING..........................33
3.3.9 SOCIO-ECONOMIC..........34
3.4 WALKING POLICY
STATEMENTS..................................37
3.4.1 REGULATION ..................37
3.4.2 INFRASTRUCTURE .........37
3.4.3 TRANSPORT PLANNING 39
3.4.4 SAFETY.............................39
3.4.5 FUNDING..........................40
3.5 INNOVATIVE SOLUTIONS.42
CHAPTER 4 ......................................44
4 IMPLEMENTATION
FRAMEWORK AND WAY
FORWARD .......................................44
4.1 IMPLEMENTATION
FRAMEWORK..................................44
4.1.1 MONITORING AND
EVALUATION..................................44
4.1.2 POLICY ADVOCACY.......45
4.1.3 EDUCATION AND
TRAINING ........................................46
4.1.4 LAW ENFORCEMENT .....46
4.2 WAY FORWARD..................47
4.2.1 Legislative Review .............47
4.2.2 Development of Guidelines.47
4.2.3 Integration of NMT into
Government process...........................47
4.2.4 Integration of NMT into
Transport Data ...................................48
4.2.5 Acceleration of NMT
Infrastructure......................................48
4.2.6 Retrofitting .........................48
4.2.7 Cycling Manufacturing
Industry… ..........................................48
4.2.8 Development of baseline of
NMT status ........................................48
4.3 CONCLUSION ......................48
ABBREVIATIONS............................50
DEFINITIONS...................................52
DRAFT NATIONAL NON-MOTORISED TRANSPORT POLICY
Transport, the heartbeat of South Africa’ economic growth and social development
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EXECUTIVE SUMMARY
This Non-Motorised Transport policy document provides a single framework and an enabling
environment for the Department of Transport, other government departments and stakeholders to
address the challenges inherent in Non-Motorised transportation.
The primary objectives of this NMT policy are, among others, to increase the role of NMT as one of
the key transport mode, integrate NMT as an essential element of public transport, and provide a safe
NMT infrastructure and allocate adequate and sustainable funding for the development and promotion
of NMT.
Non-Motorised Transport will be provided on the basis of a number of principles including the need to
improve a quality of life, energy conservation and safety.
This policy articulates various responsibilities of all stakeholders involved in the provision of NMT as
mode of transport in order to ensure that NMT provision is rendered in an appropriate manner. The
Department of Transport is the custodian of this policy and is responsible for; inter alia, the regulation,
funding, communication, infrastructure, planning, socio-economic benefits, monitoring and evaluation
of overall national NMT policy. The Department is also responsible for the review of this national
NMT policy in consultation with provincial Departments of Transport and other relevant stakeholders
The policy articulates and recognises the main facets of Non-Motorised Transport as Animal-Drawn
Transport, Cycling, Walking and Innovation Solution. The policy is pronounced in accordance to these
main four categories, where the key policy drivers for each category are articulated.
Provincial Departments of Transport are responsible for managing the implementation of NMT
provision in their respective provinces, planning (in consultation with key transport stakeholders),
identifying beneficiaries, law enforcement and ensuring road safety (together with Local
Government), capacity building, communication, and monitoring services.
In terms of planning, the policy requires that NMT plans must be developed and integrated into the
Provincial Land Transport Framework (PLTF), as well as in the Integrated Transport Plans (ITP) of
Local Government.
The policy also prescribes institutional arrangements, governance, regulatory and legislation aspects of
NMT. The regulation, legislative review and update are required with immediate implementation of
this policy. The animal welfare and health need to be protected and with collaboration with
Department of Agriculture to ensure that appropriate measure are in place.
The policy also emphasise the need to provide infrastructure and the development of the NMT
Infrastructure and Facility Guidelines. Further, it makes a recommendation for capacitating of local
government by national and provincial Department of Transport.
The policy prescribes the need to provide criteria for funding the implementation of the policy. It also
ensures that NMT plays a role in economic development, poverty alleviation and empowerment of the
marginalised groups.
The policy prescribes the need to train NMT and MT drivers and operators and performance of safety
audits as way to promote safety. The impact of NMT on the environment is addressed by the need to
respond to environmentally suitable animal transportation. The policy prescribes the need to promote
NMT as a feeder mode to other mode of transport.
The policy prescribes the need to develop minimum standards and specifications of NMT vehicles in
taking cognisance of safety. The policy provides the implementation framework that outlines the
DRAFT NATIONAL NON-MOTORISED TRANSPORT POLICY
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indicators for monitoring and evaluation, requirement of training programs for drivers and learners,
and promotion of NMT.
Lastly, this document provides a way forward regarding the pressing issues that need immediate
attention when this NMT policy is implemented.
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CHAPTER 1
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CHAPTER 1
1 INTRODUCTION
Transport is vital to development as it provides accessibility to goods, services, jobs, educational
opportunities, family, social settings and economic activities. Without viable transportation, the
quality of life does not improve and poverty is prolonged. The effects of inefficient transport systems
in rural parts of Africa, which rely on non-motorised transport in its most basic form, are manifested in
a lack of market integration, poor provision of education and health services, low productivity and low
rates of regional and local economic activity.
Transport systems developed in developed countries may not fit well with the safety needs of low
income and middle-income countries for a variety of reasons, including the differences in traffic mix.
In developing countries, walking, cycling, motorcycling and the use of public transport are the
predominant transport modes. In developed countries, car ownership is high, and most road users are
vehicle occupants. Despite the growth in motorised transport in developing countries such as South
Africa, a large portion of the population depends on non-motorised forms of transport, and this will
continue for some time. Walking is the cheapest, least space consuming and the most economical
means of transport for short distances
Non-Motorised Transport (NMT) includes all means of transport that are human powered. Non-
motorised Transportation includes Walking, Animal-Power and Bicycling, and variants such as Small-
Wheeled Transport (skates, skateboards, push scooters and hand carts) and Wheelchair travel.
As a mode of transport, non-motorised is available to almost everyone. The majority of non-motorised
class of transport modes are healthy, non-polluting, versatile and reliable. They encourage local
movement and hence support local community facilities. A shift away from private car use to non-
motorised transport, including improving accessibility for the mobility impaired, has a key role to play
in using the existing road network more efficiently and delivering significant potential economic and
environmental benefits to society, alongside tangible health and lifestyle benefits for individuals.
Most transport in South Africa takes place by road, ranging from walking on unpaved paths to motor
transport on well-paved roads. For the majority of people in rural areas, walking is the only available
option, even for transporting goods. Furthermore, most transport travel in South Africa is for essential
trips rather than for leisure.
For very short trips, walking is the main mode of transport in most societies, rich or poor. Indeed, most
trips in all countries involve some walking as access and exit to the main mode.
Walking is the most important means of transport in developing countries, followed by public
transport. Cycling has a smaller share of the total number of trips, except for a few (big) exceptions.
Generally, ,bicycles serve as a means of transport of goods and people in peri-urban and rural areas,
while in urban areas the recreational purpose of cycling is important. Cycling is another type of non-
motorised transport that incorporates bicycle, roller skates, in-line skates, skateboard, skates, tricycle,
cycle trailer, cycle rickshaws, wheelchair and baby carriage.
Animal-powered transport can be of particular social and economic benefit. Farmers with animal
transport (carts or pack animals) have wider contacts with traders. The resulting enhanced market
access allows them to increase their production and also their profit. Animal power can provide
important local `feeder' transport between farms and roads, to complement motorised road transport
systems. Good animal health is a prerequisite for the success of animal traction.
The local transport solutions like animal traction, trailers, handcarts or bicycles could assist poor and
rural communities in making them more efficient with small business and domestic duties.
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Non-Motorised Transport provides many indirect benefits. A community designed for walking and
cycling must be compact (so many destinations are within convenient distance of each other),
connected (with streets that allow direct travel), designed at a human scale, have functional and
attractive sidewalks and paths, have effective strategies to control traffic speeds, and feel safe to
vulnerable users. Increased non-motorised travel tends to improve community cohesion (the quality of
neighbourly interactions), security and aesthetics. These features provide many benefits besides just
mobility. Simple transportation improves people’s lives in different ways among others, a child can
get to school, access to economic activity, and health care services.
The 1996 White Paper on Transport Policy aimed to reduce dependence on the private car and
promote other, more sustainable modes of transport such as public transport, animal-drawn transport,
walking and cycling. Local authorities are expected to reflect this approach in their annual Integrated
Transport Plan. Non-motorised transport such as walking, is the second most significant mode (after
car travel), and has been identified as making an important contribution to these aims. Encouraging an
increase in levels of non-motorised activity is consistent with the development of integration, social
inclusion and sustainability in transport and other areas of social activity.
1.1 SITUATIONAL ANALYSIS
Effective transport as a complementary input to nearly every aspect of rural activity is an essential
element of rural poverty reduction. Non-Motorised Transport such as bicycle is ineluctable to the poor
rural dwellers. As a residual effect, in the developing world, and also in most of the underdeveloped
world, animal transportation is still highly used. South Africa has not totally crossed this threshold of
developing and underdeveloped country. There is therefore a need to evolve a policy position that will
cater for those South Africans who still need to use animal transportation, either as stand-alone mode
or in combination with other modes. Walking is such a basic human activity that it has frequently been
overlooked in the quest to build sophisticated transportation systems. Now people want to change that.
They want to live in places that are welcoming, safe, and enjoyable. They want liveable communities
where they can walk, bicycle, recreate, and socialize.
Walking provide the following environmental benefits: fresh air breathing, no fossil fuels usage, has
health benefits and uses less land space compared to other modes of transportation. This
environmental dividend of walking can only be achieved through pedestrian facility construction that
complies with the necessary environmental sustainability and protection.
In the past, animals were used to satisfy a variety of needs, and were prominent throughout the world.
Depending on the advance of technology in any particular part of the world, the level of their
withdrawal as a means of transportation and other uses was decided. In developed countries, this
withdrawal was rapid and there was immediate replacement with motorised transportation and other
quicker forms of transportation once more agriculture mechanisation gained dominance.
At first glance the bicycle seems ideal transportation for some parts of the South African landscape
because there are flat, trip distances are short and money for private motor vehicles and public transit
systems is scarce. But generally, bicycles are underutilised in South Africa. Increased bicycle use will
definitely reduce the household travel costs and enlarge the average radius of action; jobs and markets
may become within reach, thresholds for economic activities may be held. Safer traffic will decrease
the costs involved in a sudden fatality of a (economic productive) household member. Therefore one
can state that increased mobility through NMT will reduce poverty.
A significant proportion of the rural population is adversely affected by poor accessibility and
mobility. Access road systems serving rural areas are formal (compacted foundation with surface areas
such as gravel/ paved road), low cost formal (roadbed created by excavating a tract of land), and
informal road systems (formed through successive wheeled traffic across a given transect).
Means of transport, both motorised and non-motorised, require supporting infrastructure for their
manufacture, supply, and repair. It is difficult for a critical mass of users to develop without support
services, while sustainable support services are unlikely to develop in the absence of a critical mass of
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users. Socio-cultural inhibitions may constrain the use of certain means of transport until a critical
mass of users makes them acceptable.
1.2 STATUS QUO
The study for public transport access shows that over ninety percent of rural communities do not have
access to public transport such as railway services whereas fifty-five can be said to have no access in
Metropolitan municipalities. NMT was not a preferred transport solution or a government sanctioned
transport mode. The household travel survey shows that less than 0.9 % use a cycle as their mode of
transport1.
The South African rural population is nearly nineteen million, just under fifty percent of total
population of forty six million. The lives of rural people are characterised by isolation, exclusion,
hardship, unreliable access to even the most basic economic opportunities and social services. For the
majority of their transport needs, they rely on Non-Motorised Means of Transport and on rugged
paths, tracks, and roads, which are typically in poor condition and often passable in dry weather. The
rural transport network in this area is still underdeveloped and of poor quality. It was reported that on
average young children travel twenty kilometres per day to school. These children are tired when
reaching schools and tired when returning home from school. This results in poor performance at
school, a high school drop-out rate and lack of concentration. Rural households, and particularly
women, spend much time and effort on transport activities to fulfil their basic needs.
Despite the growth in motorised transport in South Africa a large portion of the population depends on
non-motorised forms of transport, and this will continue for some time. Walking is the cheapest, least
space consuming and the most economical means of transport for short distances.
Safety in South Africa constitutes one of the barriers to NMT use. Others are related to geographic
conditions, e.g. major streams, steep slopes, climatic conditions, land use developments restricting
users’ movement, high volume roads, freeways and rail lines, particularly those with limited points of
safe crossing.
Most transport in South Africa takes place by road, ranging from walking on unpaved paths to motor
transport on well-paved roads. For the majority of people in rural areas, walking is the only available
option, even for transporting goods. Furthermore, most transport travel in South Africa is for essential
trips rather than for leisure.
Cycling in South Africa is seen primarily in two distinct lights – as a means of recreation or a
necessary mode of transport for the poor who can afford nothing else besides the other alternative,
which is to walk.
In South Africa there is a considerable non-governmental and private sector involvement in NMT
Government in recognising the important role of NMT in poverty alleviation has undertaken initiatives
to leverage on different facets of NMT such as the Shova Kalula for the cycling, and pockets of
projects in relation to ADT in different provinces. Once more the SABS is finalising the development
of standards and specification of different types of NMV, mainly the bicycles and ADV.
Apart from the ill-disciplined behaviour of road users (drivers, cyclists and pedestrians), the road
environment is not always conducive to safeguarding the different modes of NMT; as a result in
August 2003 the Engineering Manual To Plan And Design Safe Pedestrian And Bicycle Facilities was
published by the DOT. However the manual has lacked the legislation to make it enforceable.
1 NHTS,2003
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1.3 LEGISLATIVE AND POLICY CONTEXT
The Constitution of the Republic of South Africa, Act 108 of 1996 Section 85 (1) (b) mandates the
Department of Transport with the role of developing transport policy. This mandate places a huge
responsibility on the Department’s role to ensure that transport policy development addresses the
mobility needs for all citizens. This call for the need to develop a Non-Motorised Transport Policy.
This NMT is governed by the White Paper on National Transport Policy (1996), National Land
Transport Transition Act, Act No. 22 of 2000, National Land Transport Strategic Framework, Public
Transport Action Plan (2007) and other legislations such as the National Road Traffic Act, Act 93 of
1996, and Animal Protection Act 71 of 1962.
1.3.1 White Paper on National Transport Policy 1996
The White Paper on National Transport Policy (1996) sets out a number of relevant policy principles.
The transport system will aim to minimise the constraints to the mobility of passengers and goods,
maximising speed and service, while allowing customers the choice of transport mode or combination
of transport modes where it is economically and financially viable to offer a choice of modes.
1.3.2 National Road Traffic Act (NRTA), Act No 93 of 1996
This act is important because it covers all traffic issues to which animal transportation should be
integrated. Some of the meanings, interpretations and clauses from this Act are used as points of
reference. However, the silence of this Act in relation to animal transportation cannot be downplayed
and a suggestion is made to the Department of Transport to look further into how the Act can be
amended to suit the policy position advocated in this document.
1.3.2.1 National Road Traffic Regulations of 1999
The National Road Traffic Regulation has made an expression that affects and regulates NMT
especially the pedal cycles and animals. The current regulation framework addresses the conditions
and standards of some facets of NMT in relation to pedal cycling, animal-drawn vehicles and safety of
the use of NMV.
1.3.3 The National Land Transport Transition Act (NLTTA), No 22 of 2000.
In line with the assertion of the neglect of NMT, there is no elaboration of NMT as part of legislation
and policy framework. In terms of planning, however, there is reference to the integration of rural
areas in the integrated transport plans. The Act also grants the Minister, in consultation with the
Member of the Executive Council (MEC) for Transport, to allow for exceptional cases of
transportation medium.
1.3.4 Urban Transport Act 1977
The Act promotes the planning and provision of adequate urban transport facilities; for that purpose
itto provides for the establishment of certain transport funds, metropolitan transport areas and
metropolitan transport advisory boards and for the preparation and implementation of urban transport
plans; and to provide for matters connected therewith. This will play a role in the implementation of
NMT in urban areas.
1.3.5 Animal Protection Act (ARA), Act 71 of 1962
This Act covers most of the issues that relate to the protection of animals as discussed in this
discussion document, particularly, the description of offences in respect of animals. All issues that
relate to the protection of the animals in this document shall be subject to the interpretation of this Act.
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1.3.6 Animal Health Act, 2002
The Animal Health Act provides measures to promote animal health and to control animal diseases
and the establishment of animal health schemes. It also assigns executive authority with regard to
certain provisions of this Act to provinces; to regulate the importation and exportation of animals and
things; and to provide for matters connected with the disposal of straying animals, duties of owners
and users regarding health of animals.
1.3.7 National Environment Management Act, 1998
The National Environmental Management Act (NEMA) is the cornerstone of environmental
governance in South Africa. NEMA sets out principles that must be applied throughout South Africa,
to the actions of all organs of state that may significantly affect the environment. The development and
promotion of animal transportation could have adverse effect on the environment if not properly
managed.
1.3.8 Rural Transport Strategy for South Africa 2007
The rural transport strategy is seen as a stimulant to social development and economic growth of rural
areas, which would in turn grow the economic resource of district municipalities. The strategy calls for
the Rural Transport Service; this includes services provided by users themselves (e.g. head loading,
private vehicular transport) and by operators of all modes of motorised and non-motorised transport,
and the promotion of non-motorised and intermediate modes of transport.
1.3.9 The Public Transport Strategy 2007
The Department of Transport is currently focusing on the following actions with regard to passenger
transport: Ensure a sustainable public transport and non motorised transport legacy from the 2010
FIFA World Cup projects; and Maximise opportunities to promote public transport and non motorised
transport infrastructure through the creative use of Municipal Infrastructure Grant, and Expanded
Public Works Programme funding. Once more the objectives of the Accelerated Recovery Plan are to
ensure the achievement of an effective public transport implementation platform by promoting land
use planning aligned to public transport network, non motorised transport and travel demand
management planning.
1.3.10 Local Government By Laws
A by-law exists to ensure that certain kinds of behaviour or/and acts are prohibited and punished if the
prohibitions are not observed. In general, by-laws primarily enforce the national enacted laws such as
National Road Traffic Act. Cities have by-laws to deal with issues among others,: traffic and parking,
street trading, littering, nuisance, informal trading, control of public nuisances, facilities for the
accommodation, care and burial of animals, local amenities and public spaces and refuse removal,
refuse dumps and solid waste disposal. These issues will be impacted by the implementation of NMT
Policy.
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CHAPTER 2
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CHAPTER 2
2 POLICY VISION AND MISSION, STRATEGIC OBJECTIVES AND
GUIDING PRINCIPLES
2.1 VISION
Non-Motorised Transport will be a sustainable and stimulant mode of transport for social and
economic development within an integrated efficient transport system.
2.2 MISSION
The mobility needs of marginalised communities and NMT users shall be met through the provision of
a safe, secure, and reliable transport system.
2.3 STRATEGIC OBJECTIVES
The objectives of a NMT Policy include, inter alia:
• Integration of NMT into the transport system including transport and spatial planning;
• Endorsement and facilitation of the use of NMT modes;
• Development of infrastructure and maintenance standards that recognise NMT as an essential
mode of transport;
• Enhancement of traffic legislation that recognises NMT as an alternative transport mode;
• Facilitation of NMT as a feeder system to other modes of transport;
• Empowerment of the marginalised group promotion of SMME through NMT;
• Allocation of adequate and sustainable funding for promotion and development of NMT;
• Promotion of NMT as reliable, healthy, affordable, accessible and safe transport mode;
• Reduction of the number of traffic fatalities of vulnerable non-motorised road users; and
• Facilitation of research and new initiatives to improve NMT performance.
2.4 GUIDING POLICY PRINCIPLES
In striving to meet the NMT policy objectives, the national government will be guided by the
following broad principles:
1. To integrate non-motorised transportation into the transport system.
2. The need to improve the quality of life of marginalised people.
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3. To adhere to the principle of environmental protection, and energy conservation.
4. The integration and connectivity of the first and second economies and the connectivity and
integration of the rural and urban areas.
5. The need for economic revitalization of the rural areas.
6. The promotion of safety as a critical facet of public and freight transport.
7. The need to increase accessibility and mobility.
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CHAPTER 3
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CHAPTER 3
This chapter focuses on the policy statements for Non-Motorised Transport, which provides a clear
framework commitment of the Department of Transport. The issues have been classified in the three
main modes of Non-Motorised Transport i.e., Animal-Drawn Transport, Cycling and Walking.
The policy statements provide a clear indication of the NMT Policy’s objectives and plans. The
following issues are addressed: infrastructure, regulation, transport planning, funding, safety and socio
economic benefits. Certain issues are specific to a particular type of NMT such as animal welfare for
ADT and local government capacity for Cycling.
3 NON-MOTORISED TRANSPORT POLICY STATEMENTS
3.1 INSTITUTIONAL ARRANGEMENTS AND GOVERNANCE
The lack of proper institutional arrangements such as planning, inter-sphere coordination and
implementation contribute too many of the problems relating to NMT transportation.
Transport is a corporative governance issue that has to be performed by the three spheres of
government. From a national department perspective, the implementation of the recommendations of
this policy shall be determined by the respective sphere, on the understanding that there are
constitutional issues which supersede these powers of the three spheres, and which therefore will find
common resonance throughout governance.
3.1.1 Roles and Responsibilities
Given its mandate, the Department of Transport has the ultimate responsibility for facilitating all
modes of transport. While this is the case, the Department of Transport acknowledges that
collaboration with the relevant stakeholders is of the essence in promoting NMT as part of modal
choice. Therefore, the Department of Transport undertakes to collaborate with the relevant
government Departments and key NMT stakeholders.
POLICY STATEMENT
The Department of Transport will co-operate with relevant government departments, and
stakeholders in developing an institutional and legal framework that responds positively to the
needs, and implementation of the NMT transport system.
3.1.1.1 Development of National Policy
Non-Motorised Transport related initiatives are currently done on project and ad hoc basis without
adherence to a set of guidelines and policy directives. National policy on NMT is necessary to set out
the guidelines for how NMT must be promoted and implemented. The Department of Transport has an
overarching role of developing national policy.
POLICY STATEMENT
The Department of Transport will be responsible for the development and review of national
policy on NMT after consultation with the relevant stakeholders.
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3.1.1.2 NMT Implementation Strategies
Planning is fundamental to the success of NMT provision. Inadequate planning could result in
problems such as insufficient allocation of resources, wastage of resources and ultimately an
ineffective implementation of the NMT programmes and initiatives. While there is evidence of
initiatives in some provinces, the practice has not been uniform across the country. Therefore, there is
a need for adequate NMT implementation strategies and plans across all spheres of government.
Provincial Departments of Transport must ensure that Local Government develops detailed
operational plans for the respective areas they are responsible for, and in line with provincial plans.
Where capacity is lacking, provincial departments must assist with the development of detailed plans
in the short-term, but make efforts to develop the capacity of Local Government in the long-term.
POLICY STATEMENTS
The Provincial Departments of Transport (PDOT) and municipalities must develop
implementation strategies and plans respectively, in consultation with key NMT stakeholders.
The Provincial Departments of Transport must ensure co-ordination and alignment of
provincial and local government NMT operational plans.
The Department of Transport will ensure that NMT transportation is included in all strategies
that are aimed at redressing rural poverty, including the ones that are currently being
implemented such as the ISRDP.
3.1.2 Co-operation between Government Departments
The Department of Transport’s approaches to the issue of animals does not supersede those of the use
of animals in small-scale agricultural farming which was developed by the Department of Agriculture.
There will be areas of convergence, particularly relating to the use of equipment and the health of
animals. In such an event of convergence, this policy discussion document should be seen only in
relation to the use of animals in transportation and the extent to which these animals find themselves
on the road network. All other responsibilities shall be dealt with by a Department or institution that is
best suited to deal with them.
In practice responsibilities for the delivery of rural infrastructure fall mainly on the local government
and provisional spheres of government, assisted by the National Department of Public Works and the
South African National Road Agency (SANRAL).
POLICY STATEMENT
The Department of Transport will work closely with the Department of Agriculture and other
relevant government departments to encourage the use of animals for transportation.
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ANIMAL-DRAWN TRANSPORT
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3.2 ADT POLICY STATEMENTS
3.2.1 REGULATION
The overall land transport regulatory framework was enacted without adequate consideration of the
need of ADT.
The animal transportation owners, operators and drivers do not adhere to rules and regulations set for
the treatment of animals and other road violations.
Animal-Drawn Transport will put strains on traffic enforcement and management resources.
Considering their current ineffectiveness, a lot of work needs to done to integrate ADT into the traffic
authority responsibilities.
POLICY STATEMENTS
The Department of Transport will update all its institutional and legislative arrangements to
effect an animal transportation-friendly legislative and institutional environment.
The Department of Transport will periodically commission or conduct research to have a
clearer understanding of the legal effects of animal transportation.
The Department of Transport will ensure issues that impact on animal transportation such as
animal abuse and accidents are included in all government sponsored statistics.
The Department of Transport in collaboration with RTMC will develop and conduct refresher
courses on traffic regulations for animal transportation drivers.
The Municipalities will update their traffic by-laws in line with the updated and new
regulations that incorporate NMT.
3.2.2 INFRASTRUCTURE
The development of road networks and other transport infrastructure is a necessary condition to
facilitate ADT and other IMT solutions. The Department of Transport is formulating the Public
Transport Infrastructure Fund as an opportunity with the local government to ensure integrated
planning in land use and transport, Integrated Transport Plans and effective strategies, as well as
determination of strategy corridors that correspond to growing passenger demands.
This policy proposal does call for the provision of infrastructure that will cater for animal
transformation, but most of this already exists for the motorised vehicles. What is needed is for animal
transportation to be seen as part and parcel of the existing infrastructure. ADT implementation will
necessitate sporadic road infrastructure upgrade and improvement.
Currently there are no or limited park-and-stop sites, and the few park and rite sites are located far
from business centres. The existing sites are not secure and do not have appropriate facilities such as
food and water amenities. The current signage system is not adequate to address warning for ADT
related traffic management.
POLICY STATEMENTS
The Department of Transport will provide standards and guidelines of infrastructure for ADT.
The Department of Transport will ensure that animal transportation is integrated into the road
network.
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3.2.3 TRANSPORT PLANNING
3.2.3.1 Integration of Animal-Drawn Transportation into Road Network Planning
Transport planning continues to marginalize animals in areas where the use of animal transportation is
critical, in spite of the reduction and obliteration of animal transport in towns and the network
planning based on the need to provide for the growing motor vehicles. Spatial Planning and Land Use
Management mandates the principle of integration, and the norms of this principle are that land use
and development should be determined by the availability of appropriate services and infrastructure,
including transportation infrastructure.
POLICY STATEMENTS
Transport planning process and spatial planning framework will reflect ADT related needs and
constraints.
The Department of Transport will ensure that animal transportation forms part of the national
transport master plan.
3.2.3.2 Capacity of Planners
The idea of traffic planners planning for the integration of animal drawn transportation onto the road
system is hampered by the fact that the few that are around are still coping with addressing the issue of
motor vehicles on the roads.
While there is a new departure in the Department of Transport about the promotion of public transport,
the challenge is to convert the current transport planners to respond to this urgent need, especially with
animal drawn transportation where there is a lack of expertise on ADT-related planning.
POLICY STATEMENT
The Department of Transport and Provincial Department of Transport will ensure that local
municipalities are capacitated within five years of implementation of this policy.
3.2.3.3 Integrated Transport Planning
Traditional transport planning methods are often inadequately suited to perform ADT planning, since
they are normally concerned mainly with development and maintenance of infrastructure. In recent
years, the concept of "integrated transport planning" has evolved. Following this approach, NLTSF, in
accordance to NLTTA mandates that land transport planning and land transport provision must be
done by paying attention to the promotion of safe and efficient use of Non-Motorised Transport modes
POLICY STATEMENTS
All Integrated Transport Plans (ITP) should cater for the use of animal transportation even
when the municipalities have not legislated on the use of animals of within their boundaries,
The strategies and plans for ADT in a province must be included in the Provincial Land
Transport Framework (PLTF) and Strategic Plan, as well as in the Integrated Transport Plans
(ITP) of Local Government.
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3.2.4 TECHNOLOGY ISSUES
There are no standardised design standards of ADV to address safety issues and animal welfare. The
current shoeing does not take the road surface into account, such that it causes damage to the road.
3.2.4.1 Retrofitting Issues
The usability of the animals so acquired will require
the issue of retrofitting to be considered in order to
enhance the value of the animals to the users. This
retrofitting should pertain to the carriages and other
equipment that may be needed in the execution of the
duty of animal transportation.
The retrofitting regime should take into cognizance
new designs which will enhance the usability of the
animal and the technologies that will demand less
power from traction animals so that their lives may be lengthened.
POLICY STATEMENTS
The Department of Transport will collaborate with SABS to develop a minimum standard and
specification for Animal Drawn Vehicles in accordance to animal welfare and safety
requirements.
The Department of Transport will ensure that effective animal shoe regulation is enacted and
also provide programs to increase the awareness of road damage issues and to encourage the
use of better shoeing practices.
3.2.5 ANIMAL HEALTH AND WELFARE
The point of departure of this policy discussion document is that draught animals require to be treated
as humanely as possible.
3.2.5.1 Harnesses
The harnesses of animals should be the ones that limit the
harm this equipment does to the animal, and shall be
determined within the standards prescribed by the animal
welfare organizations and the Department of Agriculture.
POLICY STATEMENTS
The Department of Transport will work in collaboration with the Department of Agriculture in
determining animal welfare issues such as weight distance, loads, forms of encouraging
animals’ usage, harnesses, health, etc.
The Department of Transport will liaise with the Department of Agriculture about the
inclusion of animal welfare as part of the DOA Agricultural Extension services and that
concentration of such a service should be extended to rural and substantial farmers and animal
owners who have the greatest need of using their animals for transportation.
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3.2.6 SAFETY ISSUES
3.2.6.1 Animals Wandering in the Road Network
This policy speaks only to the need for animals that provide
transportation to be on the road network. The current
regulations that bar animals from straying or wandering into
the road network will remain; and the traffic authorities will
still be required to discharge their mandate as required by
law. There is still an onus on owners and herders to make
sure that their transport animals are kept off the road
network.
POLICY STATEMENT
The Department of Transport will deal with the straying of animals in accordance with the
existing legislation.
3.2.6.2 Left side use of the road
In order to interact with their motorized counterparts in a city or town area, and because of the
limitations of speed discussed, all efforts should be made to provide for animal transportation on the
left side of the road, and to allow for a safe distance between faster cars and lower animal
transportation.
POLICY STATEMENT
The Department of Transport in collaboration with RTMC will provide programs to increase
the awareness of traffic safety issues and to encourage safe driving habits.
3.2.6.3 Travel Safety
Maintaining safe travel conditions for both motorised transport and animal drawn vehicles is a
challenge in rural communities. Furthermore, the rights of animal drawn vehicles on public roads are
not protected; motorists are not required to stop if at all possible, when in the presence of a frightened
animal, if signalled to do so by the driver of that animal. Combined with slow speeds of travel,
visibility issues are multiplied when sight distances are limited by curves or hills. Traffic safety issues
can also arise due to the unpredictability of animals. Animals may back up slightly when stopped or
become spooked by loud noises or when passed too closely by a vehicle. Traffic safety issues arise
from lack of awareness of equal road usage rights, difference in speeds of travel, poor visibility, the
unpredictability of animals, and aggressive or inattentive drivers.
POLICY STATEMENTS
The Department of Transport and RTMC will ensure that drivers of animals are trained on
observation of traffic laws on emphasis on road user safety.
The Department of Transport in collaboration with Department of Agriculture and SABS will
ensure that the minimum specification of harness includes reflectors.
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3.2.6.4 Road Safety Audits
Road safety audit involves the evaluation of road schemes during design and construction to identify
potential hazards that may affect any type of road user, and the appropriate measures to eliminate or
mitigate any such hazards. Visibility can be improved by marking “Animal-Drawn Vehicles”. A good
marking strategy needs to be equally effective in all lighting conditions.
POLICY STATEMENT
The Department of Transport in collaboration with RTMC will ensure that safer road
networks are provided and road safety audits are conducted every five years.
3.2.7 ENVIRONMENTAL ISSUES
The issue of environmental friendliness and back to the future discourses may be relevant to the issue
of animal transportation. However, the need for continued vigilance, and safeguarding animals from
environmental problems that are related to their work in the transportation, should form the underlying
consideration for all policy suggestions.
When animals are housed during their breaks or at night, the need for sanitation, timeous manure
collection and cleaning as well as urine management should be the main focus so as to prevent disease
that may arise.
In compliance with environment regulations it will be necessary to minimize or avoid the degradation
of the environment, disturbance of landscape and waste.
POLICY STATEMENT
The Department of Transport will ensure that animal transportation is conducted with due
regard to the environment.
3.2.8 FUNDING
3.2.8.1 Financial Assistance
The four most common sources for financing are donor funds, central government grants from the
general budget, local revenues (from the local government and the community), and allocations from a
dedicated road fund. These sources provide funds for capital and recurrent expenditures. The current
subsidisations of other modes of transport exclude animal transport. Currently, financial institutions do
not or make limited provision for financing animal and animal drawn vehicles and this need to be
addressed.
POLICY STATEMENTS
The Department of Transport will promote government approved funding model.
The Department of Transport will in collaboration with the Departments of Agriculture and
Trade and Industries work on a plan to give financial assistance.
The Department of Transport will develop criteria for subsidy.
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The Municipalities in collaboration with Provincial Departments of Transport will develop
funding models that are suitable to their local needs.
3.2.8.2 National NMT Fund
The fund and levies earmarked for national road fund could channel a percent into NMT designated
fund (based on special extra fuel tax). The investments in ADT infrastructure may come from the
general road budget as well.
POLICY STATEMENT
The Department of Transport will establish the NMT fund to promote the implementation of
this policy and assist Provincial governments and Municipalities in funding ADT-related road
infrastructure improvement.
3.2.9 SOCIO-ECONOMIC
3.2.9.1 Impact on communities
The introduction and promotion of animal-drawn transport service will offer socio economic benefits.
Transport is not simply about mobility and infrastructure; it is also about socio-cultural roles and
responsibilities that impede the development of marginalised groups.
POLICY STATEMENTS
The Department of Transport will work with marginalised groups to facilitate their full
participation in animal transportation.
The Department of Transport, in collaboration with key stakeholders, will facilitate the use of
ADT to assist the socio-economic development and poverty alleviation.
3.2.9.2 Insurance
The entry of the animals into the road system means that they will be subjected to collisions and road
accidents. The insurance should consider the issue of the liability of animals to other road users, if the
animals are found to have been wrong.
Insurance is one of the issues that should be addressed regarding the deprivations of the marginalised
groups from the insurance benefits. There will be a need of appropriate financial protection
instruments such as third party liabilities to cater for the insurance for passengers and goods
transported in ADV.
POLICY STATEMENT
The Department of Transport will ensure that the Road Accident Fund covers the claims and
losses, and injured passengers related to animal transport where operators are licensed.
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3.2.9.3 Growth of Economy
It is expect that the adoption of Animal-Drawn Transport
might create both direct and indirect related business
opportunities. Business opportunities are possible, such
as manure collection, repairs and spares, local-driven
transport system for goods, tourism, ADV manufacturing
and other related manufacturing activities, etc. Attention
should be paid to the infrastructure and services needed
to sustain animal power use. The experience of many
countries is that animal power can develop and be
sustained by small-scale private sector enterprises,
provided there is a critical mass of users.
POLICY STATEMENT
The Department of Transport will support the development of enterprises and opportunities
such as tourism opportunities, market access and encourage a two-way communication
between towns and rural areas.
3.2.9.4 Under-utilised Roads
Animal transportation could provide transport to these non-motorable paths. Even when roads are
provided in rural areas, some are navigable only through high powered all wheel cars. Animal
transportation provides an alternative where roads are impassable because of bad weather conditions.
POLICY STATEMENT
The Department of Transport will encourage the use of roads that are under-utilised. It will
introduce animal transportation and other modes of non-vehicular transport on those roads that
are not used or are under-utilised by motor vehicles.
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CYCLING
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3.3 CYCLING POLICY STATEMENTS
3.3.1 REGULATION
The transport legal obligation and regulatory requirements were enacted without the comprehensive
consideration of cycling as mode of transport. Appropriate traffic law enforcement can prevent
conflicts and collisions, and help instil lifelong traffic safety habits. The relative simplicity of
operating a bicycle as a non-motorised vehicle has made operating licences unnecessary.
POLICY STATEMENT
The Department of Transport will update all its institutional and legislative arrangements to
effect the most cycling-friendly legislative and institutional environment possible.
The Municipalities will update their traffic by-laws in line with the updated and new
regulations that incorporate NMT.
3.3.2 INFRASTRUCTURE
The development of road networks and other transport infrastructure is a necessary condition to
facilitate cycling and other IMT solutions. The Department of Transport is formulating the Public
Transport Infrastructure Fund as an opportunity within
the sphere of local government to ensure integrated
planning in land use and transport, Integrated Transport
Plans and effective strategies as well as determination of
strategies corridors that correspond to growing passenger
demands. The current signage system is inadequate to
address warning for Cycling related traffic management.
The provision of the cycling infrastructure is currently
governed by the Pedestrian and Bicycle Facility
Guidelines that the Department of Transport has already
developed. The guideline also pronounces on the factors
that should be considered in determining the appropriate
bicycle facility type, location and priority for
implementation. In addition to what has been proclaimed
by the guideline the following additional facilities and infrastructure such as drainage inlet grates,
guarded cycle parking facilities, tow bars on public transport, should be considered.
POLICY STATEMENTS
The Department of Transport will ensure that road infrastructure is improved to accommodate
the cycling needs and that future road development incorporates cycling needs where
necessary.
The Department of Transport will ensure that cycling is integrated into the transport network,
and that this mode is included in new transportation policies.
The Department of Transport will ensure that the Pedestrian and Bicycle Facility Guidelines
and South Africa Road Safety Manual are used in the provision of facilities for cycling.
The Department of Transport will update the signage system to integrate cycling needs and
requirements, and the Provincial Department of Transport will ensure its adequate
implementation.
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The Department of Transport in collaboration with Department of Environment and Tourism
and the Department of Art and Culture will ensure that Parks and Heritage sites accommodate
NMT needs.
3.3.3 TRANSPORT PLANNING
3.3.3.1 Integrated Transport Planning
Requirements for the integration of transport planning have been legislated in terms of the National
Land Transport Transition Act of 2000. Design standards for cycling infrastructure are not integrated
with current design standards for motorised traffic; and it is important that the Traffic management
plans for roadwork provide for cycling requirements.
POLICY STATEMENT
All Integrated Transport Plans (ITP) should cater for the use of cycling, with appropriate
modal split and set concrete goals and methods to achieve this modal split.
3.3.3.2 Specific and Generic Cycling Planning
An efficient transportation system requires planning and investment policies that are unbiased in terms
of mode, based on “least cost” transportation planning principles. The best practice of NMT planning
prescribes the creation of specific facilities and improving generically the conditions for NMT, by
weakening the dominance and threat of motorised modes of transport.
Spatial Planning and Land Use Management of government mandates the principle of integration
which reflects the need to integrate systems, policies and approaches in land use planning and
development.
POLICY STATEMENT
Transport planning process and spatial planning framework must take into consideration the
cycling related needs and constraints.
3.3.3.3 Traffic Management
Traffic management entails influencing the traffic supply and
demand in terms of time and place, in order to achieve a
system that functions as well as possible. Traffic management
affects the choice of route, the time at which individuals travel
and their driving behaviour. Traffic information, amongst other
things, influences these factors. For short distances NMT
appears to be the most efficient means of mobility, while for
longer distances public transport or cars offer greater
efficiency. The idea is to justify interventions that promote all
those transport modes, including cycling, which contribute to
the efficiency of the transport system as a whole (or to a more
efficient mix of modes). Safety concerns call for a design of
roads and crossings so that conflicts between fast and slow
traffic is minimised.
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POLICY STATEMENT
All future Traffic Management strategies developed shall comprise statistical elements and
information that pertains to cycling.
3.3.3.4 Modal Integration
Combining the bicycle with public transport realises benefits for the rider and passenger as well as the
public transport operator. Effective cycle linkages with public transport can extend the range and
usefulness of bicycles, especially for commuting, but also for activities such as tourism. The bicycle
can potentially be used at both ends of public transport trips. Public transport operators can
significantly increase the catchment areas for their system by providing for bicycles. Cycling can be
accommodated in most categories of the road network, namely unpaved rural roads, paved urban
roads, pavements, sidewalks and pedestrian pathways depending on the type of bicycle used. No other
transport mode has this luxury.
POLICY STATEMENTS
Cycling will form part of the national transport master plan.
The Department of Transport will encourage the use of roads that are under-utilised, to
promote the use cycling as part of intermodal transport.
3.3.4 SPECIFICATION AND STANDARDISATION
There is a need for the intervention of the regulatory or
traffic authorities to bring some uniformity to the
physical attributes. The Standardisation could include
among others, the type of seat, reflectors, tail and head
lights, weight, and colour coding. In the event that
these are multi-coloured, there should be a
distinguishing feature that shows that they are in the
same category.
POLICY STATEMENT
The Department of Transport in collaboration with SABS will define the minimum standard
and specification of cycles.
3.3.5 LOCAL GOVERNMENT CAPACITY
It must be recognised that a successful local authority policy requires capacity building at the local
level to create a body of experienced and well trained technicians and transport managers, who are
able to advise local leaders on their choice of system and policies, based on current practise. They
should therefore have a sound knowledge of transportation facility design, environmental impact
mitigation, traffic flow analysis, traffic control, and transportation planning. The lack of capacity
(human and financial) is mentioned as a crucial factor, hindering further development of NMT.
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Capacity building involves the creation of an enabling environment, where sound institutions and
adequate human resources (quantitatively and qualitatively) are present.
POLICY STATEMENT
The Provincial Department of Transport will ensure that local governments are capacitated
within five years of implementation of this policy.
3.3.6 SAFETY ISSUES
Safety is an important issue in policies to stimulate the use of non-motorised transport modes, such as
cycling. This holds true in particular for children. Safer
transport networks would yield opportunities for
substitution towards non-motorised modes. As has been
mentioned above, there are a number of ways to improve
safety of transport networks by providing adequate
infrastructure.
3.3.6.1 Social Safety
In addition to traffic safety there is also social safety. In
many cities the perceived lack of social safety discourages
the use of non-motorised transport and of public transport. It is here that local governments can do
much to improve the situation. The introduction of social safety as a design criterion in the planning of
infrastructure for non-motorised transport modes will improve the social safety problem.
POLICY STATEMENT
The Department of Transport will promote social safety through provision of facilities such as
lighting of cycle paths, guarded parking and police surveillance.
3.3.6.2 Safety Gear
Protective gear, defensive riding can protect cyclists from serious injury. A helmet is the main safety
gear recommended for cyclists. However, in Netherlands with low bicycle fatalities, helmets are not
predominantly used. Another potential problem is that cyclists may be induced to take more risks
given the protection of the helmet. Some individuals wear gloves to protect their hands from scrapes
and bruising, and bright-coloured clothing, especially at night is advised to increase cyclists’ chances
of being seen by motorists.
POLICY STATEMENT
The Department of Transport will develop a safety gear guideline in consultation with key
stakeholders.
3.3.6.3 Protection Charter
A Charter could be considered which will outline minimum regulation requirements, training
requirements, sales requirements, safety requirement, facilities and cyclist behaviours.
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POLICY STATEMENT
The Department of Transport will develop a Cycling Protection Charter outlining regulation,
training, sales, safety requirements, facilities and cyclists behaviours.
3.3.6.4 Road Safety Audits
Road safety audit procedures are incorporated into the Design Manual for Roads and Bridges which
became the design standard for National Roads in early 2001 in western countries. Road safety audit
involves the evaluation of road schemes during design and construction to identify potential hazards
that may affect any type of road user, and the appropriate measures to eliminate or mitigate any such
hazards.
POLICY STATEMENT
The Department Transport will ensure that safer road networks are provided and road safety
audits are conducted every five years.
3.3.7 ENVIRONMENTAL ISSUES
Traffic congestion, noise and air pollution are frustrating ingredients of city travel in many parts of the
world. There is no pollution from bicycles, they are silent, economical, discreet, and accessible to all
members of the family and, above all, a bicycle is faster than a car over short distances (5 km and even
more in the case of traffic jams). Even if the bicycle is not the only solution to traffic and
environmental problems, it represents a solution which fits perfectly into any general policy which
seeks to re-enhance the environment. The implementation of cycling infrastructure in particular in an
environmental sensitive area such as beaches, wetlands must be prohibited, thus cycling should be
conducted with the need to protect and conserve the environment.
POLICY STATEMENT
The Department of Transport will enforce cycling that responds to environmentally suitable
transportation.
3.3.8 FUNDING
The four most common sources for financing are donor funds, central government grants from the
general budget, local revenues (from the local government and the community), and allocations from a
dedicated road fund. These sources provide funds for capital and recurrent expenditures.
Many of the impediments to cycling arise from the inadequacy of infrastructure that is not addressed
through the traditional funding mechanisms. Various multi facets funding models should be
investigated.
When funding is limited, emphasis should be given to low-cost improvements such as bicycle parking,
removal of barriers and obstructions to bicycle travel, and roadway improvements.
POLICY STATEMENTS
The Department of Transport will promote all government approved funding model.
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The Department of Transport will collaborate with the Departments of Trade and Industries to
work on a plan to give financial assistance to rural people who would like to purchase cycles
for public transport purposes.
The Department of Transport will develop criteria for subsidy.
The Department of Transport will be responsible for processing all donations and develop the
criteria of distribution of donated equipment based on:
� Maximum walking distance
� Availability of public transport
� Affordability of public transport.
The Municipalities in collaboration with Provincial Departments of Transport will develop
funding models that are suitable to their local needs.
3.3.8.1 National NMT Fund
The fund and levies earmarked for national road fund could channel a percent into NMT designated
fund (based on special extra fuel tax). The investments in bicycle infrastructure may come from the
general road budget as well.
POLICY STATEMENT
The Department of Transport will establish the NMT fund to promote the implementation of
this policy and assist Provincial governments and Municipalities in funding cycling-related
road infrastructure improvement.
3.3.9 SOCIO-ECONOMIC
A key indicator in social, political and economic development, transport is not simply about mobility
and infrastructure, but also about socio-cultural roles and responsibilities that impede the development
of women and girls. One of the reasons for transport being important for the development of women in
rural areas is that it has impact on women and children accessing health services, educational facilities
and employment, as well as participating in key decision-making forums. Transport can improve the
lives of women by reducing the amount of time they spend on household activities. Gender issues
have unfortunately also not been considered in policy and practice in rural transport systems in the
majority of developing countries – the latter situation entrenches social and spatial exclusion in rural
transport.
As can be found in all statistics, women are using far less the bicycle as means of transport in
developing countries as men do. As women carry out most of household transport, a higher rate of
bicycle use could reduce their workload significantly and help to prevent some unhealthy effects.
POLICY STATEMENTS
The Department of Transport will work with marginalised groups to facilitate the adoption of
cycling by those groups as owners, operators and drivers.
The Department of Transport will ensure that cycling as transport mode plays a role in
economic development and poverty alleviation.
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Bicycle maintenance is also an important safety component. Experts suggest that bicycles should be
professionally inspected on an annual basis, and the cyclist must check tire inflation before each ride
and make certain chains are adequately lubricated. The lesson learned from the Shova Kalula has
highlighted the importance of the availability of reliable and sustainable maintenance networks.
POLICY STATEMENT
The Provincial Department of Transport will facilitate with municipalities in the establishment
of maintenance and repair shops which should be included in the Local Economic
Development programs.
3.3.9.1 Local Industry development
The tariffs on bicycles are used by different countries especially the "protective tariff" with the intent
to artificially inflate prices of imports and "protect" domestic industries from foreign competition. The
lack of local bicycle manufacturing plants makes South Africa vulnerable to inflow of bicycle imports
especially from China. Critical mass of cycling and adoption will necessitate availability of affordable
cycling equipments which can only be guaranteed by locally manufacturing these equipments.
National Industrial Policy Framework (NIPF) is another approach of government to the development
of industry of SA economy is through .National Industrial Policy Framework (NIPF). The primary
objective of the National Industrial Policy Framework (NIPF) is to set out government’s approach to
the industrial development of the South African economy. Consequently the NIPF sets out a vision for
the industrial economy for both the short-medium and medium-long term.
POLICY STATEMENT
The Department of Transport will collaborate with the Department of Trade and Industry to
ensure that an appropriate cycling manufacturing industry strategy is developed and
implemented.
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WALKING
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3.4 WALKING POLICY STATEMENTS
3.4.1 REGULATION
Pedestrian safety has been overshadowed by policies that over- emphasize the need to adhere to safe
driving, to the extent that the issue of pedestrians is not addressed as a priority, because pedestrian are
at fault for being on roads. In other words, roads are still considered to be the preserve for motorists
only.
There is a low level of training of traffic officers on issues that affect pedestrians and this exacerbates
the notions mentioned in the previous factor. In driver training, drivers are made aware of the threat
they pose to, and are posed by other motor users rather than all road users. Pedestrians face the highest
risk of dangers and safety.
POLICY STATEMENTS
The Department of Transport will ensure that appropriate regulative measures are in place
against pedestrians and drivers who transgress road laws.
The Department of Transport will establish and strengthen laws relating to vulnerability of
pedestrians.
The Municipalities will update their traffic by-laws in line with the updated and new
regulations that incorporate NMT.
3.4.1.1 Conscientization of Drivers
The historic design of infrastructure has always been adapted to suit the motor vehicles, which in turn
gives drivers the mistaken notion that they should dominate the road. There should be a conscious
decision to emphasise the treatment of road users as equals as opposed to a situation where private
vehicles are given special status symbols over other road users.
POLICY STATEMENT
The Department of Transport will update the regulation to include a fault legislation in the
event of a collision with pedestrians or other non-motorised road users.
3.4.2 INFRASTRUCTURE
Most of the public generally considers pedestrian facilities to be
limited to sidewalks; however, they encompass a much broader
scope of services and facilities. Pedestrian facilities include, but
are not limited to, traffic control devices, curb ramps, grade
separations (overpasses and underpasses), crosswalks, and design
features intended to encourage pedestrian travel (such as traffic
calming devices including speed bumps or centre refuge islands).
In general, these facilities parallel the roadway system and are
provided as part of the public right-of-way.
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3.4.2.1 Traffic Calming
In order to protect pedestrians, and to promote this form of transportation, this policy advocates and
supports traffic calming measures with certain provisos.
POLICY STATEMENT
The Department of Transport will ensure that the Pedestrian, Bicycle Facility Guidelines and
South African Road Safety Manual are used in the provision of facilities for walking.
3.4.2.2 Public Walking Space
The responsible officials need to conduct a study of extent of street lightning, develop a method by
which unlit streets will be lit and determine their life
expectancy. Street lights invite more and more
people to walk because they indicate safety, and to
the extent that they are always lit (i.e. in tunnels as
well) they provide necessary levels of surveillance
and pedestrians being seen by others who can help in
the event of difficulties and insecurity.
Specifically this task should also involve an audit of
lighting that assists pedestrians in parks and open
public spaces. We have already indicated the need for
conducting an audit of walkways and pedestrian
pavements in this document. In this audit should be
included the number of lit and unlit walkways extent of verges, public spaces etc.
There is a need to solicit the help of the police and municipal traffic, safety and security officers and
Community Policing Forums (CPF) to reduce crime in walk paths. Community policing forums
already exist in many wards. In protecting pedestrians, community policing forum members will be
integrated into their communities as people who serve the community rather than serve the interest of
the police, a problem that has caused the acceptance levels of CPF to be low in some communities.
The implementation of safety and security for pedestrians can be made possible by the fact that in
some provinces, MECs responsible for roads are also responsible for safety and community liaison
with minor variations from province to province.
POLICY STATEMENTS
The Department of Transport will establish a formula to determine backlogs of walking
facilities construction, taking into account all the relevant factors such as economic dynamics
and input costs.
The Department of Transport will consult road agencies and other implementing institution to
discuss both the issue of retrofitting, integration of walkways and sidewalks for
implementation of new constructions.
3.4.2.3 Crossing
Yield controlled crossings, first introduced in South Africa in 1952 are the usual black and white
stripes across a road, giving the right of way to pedestrians. But since they were introduced, there
have always been complaints that they were not achieving their objectives.
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POLICY STATEMENT
The Department of Transport will ensure that regulation is updated to force drivers to stop at
yield controlled crossings.
3.4.3 TRANSPORT PLANNING
There is a need to change the design of roads of the 1960s
where guardrails separated roads to prevent people from
crossing, where there were narrow pavements, the
unwelcoming gyratory systems and dual carriage ways
which made it impossible for pedestrians to experience
freedom on the road). New traffic planning and road
engineering should see pedestrians as part of the road
community. Land use patterns should encourage the use of
public transport. However in urban areas, encouragement of
walking may mean restrictions on vehicular movements
through the design of urban streets/public spaces.
POLICY STATEMENT
The Department of Transport will ensure that Transport planning process and spatial planning
framework should take into consideration the walking related needs, and constraints.
3.4.3.1 Travel Demand Management
Travel Demand Management (TDM) strategies should also take into accounts the travel choices, and
patterns of pedestrians. In these strategies the following should be taken into consideration:
• Pedestrians usually make trade offs between travelling and cancelling if they feel their travel
will be unsafe.
• Pedestrians choose to travel more on certain days than on others;
• A travel to a particular single destination may trigger travels to other destinations.
TDM should also take into consideration the age categories of pedestrians in light of the growing life
expectancy and the resultant mobility patterns of the elderly.
The TDM should also consider that the integration of the disabled of all categories into the broader
economy and society (as opposed to the past where they were largely home or institution bound)
brings to the mix a new category of pedestrians.
POLICY STATEMENT
The Department of Transport will include walking in future Travel Demand Management
strategies
3.4.4 SAFETY
High volumes of traffic can inhibit a person’s feeling of safety and comfort and create a “fence effect”
where the street is almost an impenetrable barrier. Traffic speed is usually the more critical aspect to
walkability and safety. Though pedestrians may feel comfortable on streets that carry a significant
amount of traffic at low speeds, faster speeds increase the likelihood of pedestrians being hit. At
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higher speeds, motorists are less likely to see a pedestrian, and even less likely to actually stop in time
to avoid a crash.
Some pedestrian crashes are associated with deficient
roadway designs. Pedestrians and motorists often
contribute to pedestrian crashes through a disregard or
lack of understanding of laws and safe driving or
walking behaviour.
People with disabilities may have limited visual and
cognitive ability, or a combination of disabilities,
which is more common as a person grows older. A
person may experience a disability on a permanent or
temporary basis. Without accessible pedestrian
facilities, people with disabilities will have fewer
opportunities to engage in employment, school, shopping, recreation, and other everyday activities.
POLICY STATEMENTS
The Department of Transport will promote “sustainable road safety” by recognising the
vulnerability of pedestrians and their safety needs.
The Department of Transport will develop and ensure adequate use of the Walk Hazard
Reporting System in order to identify problems areas in walking facilities, walkway designs
and maintenance backlogs.
3.4.5 FUNDING
Pedestrian projects and programs can be funded by national governments, provincial, local, private, or
any combination of sources. The fund and levies earmarked for national road fund do not
accommodate the funding needs for NMT.
POLICY STATEMENTS
All sphere of government must prioritise the availability of funding for pedestrian and
crossing facilities.
The Municipalities in collaboration with Provincial Departments of Transport will develop
funding models that are suitable to their local needs.
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INNOVATIVE SOLUTIONS
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3.5 INNOVATIVE SOLUTIONS
Transportation professionals and citizens often ignore innovative NMT modes of transport, such as the
small-wheeled transport, wheelbarrows, hand pushed carts, which is often ignored by transportation
professionals and citizens. However it encompasses many benefits to transport costs, reduction of
motorised transport trips, a healthy lifestyle and increased community liveability.
In the absence of sufficient regulation, South Africa takes little notice of boarders, skaters, blades and
scooters. Under the law these modes of transportation exist in a legal no-man’s land, exempt from the
provisions of any vehicle code or regulation. Small-wheeled transport or innovative transport is not
subject to the regulations or provision of the motorised vehicles, or that of a bicycle or pedestrian.
These small innovative human powered contraptions are not bicycles or motor vehicles and the users
are not pedestrians, even though they share similar objectives.
The sales of skateboards push scooters, in-line skates and other innovative NMT modes of transport
are phenomenal despite being limited to skate-parks which are almost non-existent in South Africa.
This means there is an already existing culture and generation of NMT users present in South Africa.
Still these users are marginalised due to the lack of understanding of transport authorities
POLICY STATEMENTS
The Department of Transport will commission research regarding the incorporation of small-
wheeled transport into transport system.
The Department will encourage the use of alternative modes of non-motorised transport such
as small-wheeled transport and other innovative NMT means.
The Department of Transport will support and enhance a healthy environment by providing
safe and convenient facilities for small wheeled transport and other innovative NMT means.
The Department of Transport will support and encourage innovative modes of NMT by
integrating transport and land use.
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IMPLEMENTATION AND WAY FORWARD
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CHAPTER 4
4 IMPLEMENTATION FRAMEWORK AND WAY FORWARD
This chapter focuses on the policy implementation framework and the way forward for Non-Motorised
Transport. The implementation framework provides a clear framework of commitment for the
Department of Transport. The following issues should be covered in the statement; monitoring and
evaluation, policy advocacy and training and education. The way forward provides a framework for
the future growth and development of NMT sector.
4.1 IMPLEMENTATION FRAMEWORK
NMT as government transport policy for its implementation it might be heavily dependent on other
related policies, such as the extent to which car use is facilitated, public transport is provided and
spatial planning of cities is carried out. Therefore, extensive guidance and capacity building of
intermediaries appeared crucial for achieving successes.
Communication turns out to be one of the most crucial conditions for achieving the expected, medium-
and long term impact; not communication for its own good, but for disseminating knowledge,
innovations and arguments; in order to sensitise, involve and activate other stakeholders, ministries,
provinces, private sector, public transport operators, municipalities etc.
4.1.1 MONITORING AND EVALUATION
It has been argued that there are less NMT vehicles on South African roads and more cars are
congesting these roads. The current infrastructure is not NMT friendly; Local government need to be
capacitated as it their mandate to implement all government policies; Training of traffic authority and
road user is essential; The local government need to ensure that appropriate and adequate facilities are
provided to promote NMT as modal choice; Safety is an essential element of any transport mode;
Transport planning processes cannot ignore the needs and requirement of NMT.
The Department of Transport will be responsible for the monitoring and evaluation of overall NMT
Policy performance and to ensure effective policy implementation. The Provincial Department of
Transport will ensure monitoring and evaluation of NMT provision programmes. Local government
will be responsible for monitoring and evaluation of plans and implemented projects related to NMT
provision at local levels.
POLICY STATEMENT
The Department of Transport will monitor the success of this policy through the development
of indicators.
4.1.1.1 Policy Review
For the purposes of monitoring, 2014 should be the first date where such a policy should be reviewed
because this date is in line with other time frames that drive government projects. The following six
years, 2020, should also be the review period where an evaluation report will be written to inform the
need for strengthening or toning down of the policy.
POLICY STATEMENT
The Department of Transport will review this NMT in fiscal year 2014, in fiscal year 2020,
and when need arises.
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4.1.2 POLICY ADVOCACY
4.1.2.1 Access for the Poor
The idea of a NMT policy addresses principally the needs of the poor. The marketing of this policy
should therefore show the benefits for the poor, but also indicate that the benefits that will accrue to
the middle class as a result of the increased trade, more access to schools and the revival of the
industries related to NMT.
POLICY STATEMENT
The Department of Transport will market and create awareness of the NMT policy by
choosing an appropriate medium in accordance with the targeted audience.
4.1.2.2 Promotion
Promotional activities should be undertaken to strengthen the image of the NMT as a modern and
attractive mode of transport.
POLICY STATEMENTS
The Department of Transport will promote NMT through a variety of means.
The Department of Transport, in conjunction with RTMC will continue to communicate
correct driver’s and pedestrian’s behaviour in order to reduce the number of fatalities on our
roads. There is however, a need to reconfigure the message towards the responsibilities of
both the driver and the pedestrian than blame the pedestrian for being on the road.
4.1.2.3 Public Participation
Most poor people in rural areas do not have basic access to information. However the radio is the best
mass medium for the marketing and awareness for the policy of animal transportation especially in
marginalised areas. This should include the multi-purpose centre, imbizo, etc. Private-public
partnership will be necessary to open possibilities of credit facilities. The public sector should avoid
direct competition with private sector services, for example in the supply of animals, equipment or
health products.
POLICY STATEMENTS
The Department of Transport will develop a Communications Strategy for the Promotion of
NMT in South Africa and to integrate this policy with the existing promotional efforts of
Public Transport.
The Provinces in collaboration with the Municipalities will develop communication plans to
promote NMT.
The Department of Transport will market and create awareness of the NMT policy by
encouraging public debates and the participation of the private sector.
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4.1.3 EDUCATION AND TRAINING
NMT users and motorist education programs are key ingredients to building a successful NMT
transportation system and fostering the growth of NMT use in a community. Education programs can
help to dispel the myths, encourage courteous and lawful behaviour among motorists and NMT users
of all ages, and enhance the skill level of cyclists and motorist awareness, thus leading to a reduction
in crashes.
The education program can be administered through a number of different agencies and interest
groups, such as police departments, schools, libraries, cycle clubs, parks and recreation departments.
• NMT education should be integrated into the current scholar patrol and road safety education
in schools. The Road Traffic Motor Corporation should be tasked with the development of
these educational programmes; and
• Motor vehicle driving schools should be encouraged to teach learner drivers about ADT,
cycling and pedestrian safety.
Awareness raising and education/training of road users on traffic safety, especially related to NMT at
large have an important impact on the behaviour of motorised-users, if combined with other initiatives
including policing and design changes of vehicles and road environment. Generally, road safety
education consists of teaching skills, knowledge, understanding of and behavioural patterns, to enable
road users to prevent accidents. It will take place at primary and secondary schools, driving schools
and at specific courses.
POLICY STATEMENTS
The Department of Transport in collaboration with RTMC and Department of Education will
develop NMT education to be taught in primary and secondary education.
The Department of Transport in collaboration with RTMC and Department of Education will
provide periodical NMT educational road shows.
The driving school learners’ program must include NMT and its safety-related lesson.
The Department of Transport and the Department of Education will continue to co-operate in
the provision of road and traffic related training and lessons and awareness to scholars.
4.1.4 LAW ENFORCEMENT
Traffic enforcement is main concern of traffic management due to lack of and breakdown in discipline
in South African road. Traffic law enforcement officers play a key role in encouraging improved road
user behaviour.
POLICY STATEMENTS
The Department Transport will ensure that the enforcement of NMT regulations is enforced
and that the recommendation provided in this policy are given the necessary considerations.
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4.2 WAY FORWARD
This NMT Policy provides a framework for the future growth and development of the non-motorised
transport sector. The policy should leverage on the progress and success that has been achieved and
realised by the Shova Kalula and pockets of other ADT projects from provinces, the pilot prototype
testing done by SABS, the work done by NGOs in promoting and protecting animal welfare and other
regulatory inputs and initiatives, the proliferation of cycling as a sport and the nature of walking as a
primary mode of transport..
It is expected that the NMT Policy should enhance the vision of developing non-motorised
transportation especially animal transportation in South Africa as significant contributors to economic
growth and employment opportunities in the country.
From a non-motorised transport perspective the most significant developments have been the Shova
Kalula, the development and testing of prototypes of ADV, bicycles and other non-motorised vehicles
and devices by the SABS. NMT Policy sets out to facilitate the next step in improving the quality of
life, especially for the marginalised groups and rural communities in particular. This will be a
behemoth task because this is first national NMT policy developed in South Africa, although
numerous policies at local level, studies, investigations, inquiries and research have shown this to be
an achievable and worthwhile vision.
The Department of Transport recognises that policy documents and statements alone will not achieve
the desired objectives. It is the combined efforts of the public and the private sectors working together
on a common strategy that will achieve the objectives. To this end the DOT has set for itself these
implementation priorities to facilitate the achievement of the policy objectives.
4.2.1 Legislative Review
There is an immediate need to perform a legislative and regulatory review with the intent of updating
the current laws to accommodate the non-motorised transport system, especially with regard to animal
transportation.
4.2.2 Development of Guidelines
There is need to develop the ADT infrastructure and facility guidelines and secondly to review and
update the Pedestrian and Bicycle Facility Guidelines in order to ensure that it adequately includes all
facilities that are needed to promote NMT. Subsequent to these this two tasks a NMT facility and
infrastructure guideline should be developed.
4.2.3 Integration of NMT into Government process
There is a need for an integrated planning at a higher level than within the Department of Transport.
This will mean that the Department has to exhaust the issue within its structures such as MINMEC and
COTO.
The issue of NMT is an added responsibility to a regime in both government and the private sector that
has neglected it for a long time. It is imperative that strategic operational and implementation plans are
developed by the three sphere of government to propel implementation NMT policy. Secondly there is
need for the allocation of personnel that will champion NMT in communities and in government, this
could be achieved by the formation of a directorate or prioritising NMT issues within current
organisational development. All these pertain to a form of human resource reorganisation or
recruitment. There is therefore a need for Human Resource Training and planning.
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4.2.4 Integration of NMT into Transport Data
There should be continued monitoring and collection of data on risk exposure of NMT users. This data
collection should be accompanied by data verification and validation against benchmarks. While it is
true that there are more pedestrians and animals killed on our roads, blaming the victims for their
problems should be based on the causal effect of other road users on the fatality rates of pedestrians
and animals.
4.2.5 Acceleration of NMT Infrastructure
Infrastructure encourages and promotes the adoption and usage of NMT. There is need to leverage on
the progress made by the Shova Kalula initiatives. Thus it is imperative that the areas where Shova
Kalula has increased the usage and number of bicycles, that infrastructure development should become
a priority. The Department of Transport should work with provincial and local government to ensure
that infrastructure is improved in these areas with immediate effect.
4.2.6 Retrofitting
The widely used carts especially in rural communities are made out of scrap metals and vehicle axles
which are heavy, with less consideration of animal welfare, safety and road hazard. The finalisation of
the ADV specification and standards will render most of the available carts unsuitable to be on public
road. It will be imperative that these communities are provided with carts that meet the minimum
specification. The Department of Transport should develop a criterion and process to replace the old
carts with compliance carts.
4.2.7 Cycling Manufacturing Industry
The envisaged cycling manufacturing strategy needs to consider the challenges, costs and benefits of
promoting the development of local manufacturing plants. The promotion of this manufacturing
strategy should be done in phases and systematically, where local assembly plants are encouraged
through tariffs, until the demand necessitates the need for comprehensive local cycling manufacturing.
4.2.8 Development of baseline of NMT status
It will be important to understand the NMT proviso through a comprehensive study. The Department
of Transport need to develop baseline on the performance of the NMT related attributes, and secondly,
to assist the Department in finalising the appropriate success indicators. The study could be completed
without waiting for the approval of the policy.
4.3 CONCLUSION
The finalisation of the non-motorised transport policy is reflection of the commitment of the
Department of Transport to the provision of safe and reliable non-motorised transport. The
Department of Transport will prioritise the provision of non-motorised transport as outlined in
policy statements in this document and translate them into practical service delivery
initiatives. Once more the Department will ensure that certain initiatives are carried out as
foundation to sustain the momentum of the success of this policy, as expressed in the way
forward.
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APPENDICES
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APPENDIX 1
ABBREVIATIONS
AARTO Administrative Adjudication of Road Traffic Offences
ADT Animal-Drawn Transport
ADV Animal-Drawn Vehicle
ASGISA Accelerated Shared and Growth Initiative for South Africa
CHPA Cart Horse Protection Association
COTO Committee of Transport Officials
CPFs Community Policing Forums
CSIR Council for Scientific and Industrial Research
DOA Department of Agriculture
DOE Department of Education
DOT Department of Transport
DSD Department of Social Development
DTI Department of Trade and Industry
IDP Integrated Development Plan
IFRTD International Federation for Rural Transport and Development
IMT Intermediate Means of Transport
ISRDS Integrated and Sustainable Rural Development Strategy
ITP Integrated Transport Plans
LED Local Economic Development
M&E Monitoring and Evaluation
MEC Member of The Executive Council
MINMEC Ministers and MECs (of Transport)
MSA Moving South Africa
MV Motorised Vehicle
NEMA National Environmental Management Act
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NGO Non-Governmental Organization
NHTS National Household Travel Survey
NLTSF National Land Transport Strategic Framework
NLTTA National Land Transport Transition Act 22 of 2000
NMT Non-Motorised Transport
NMV Non-Motorised Vehicle
NRTA National Road Traffic Act
NSPCA National Society for the Prevention of Cruelty to Animals
PPP Public-Private Partnership
RAF Road Accident Fund
RCB Roads Co-ordinating Body
RIFSA Road Infrastructure Framework for South Africa
RTI Rural Transport Infrastructure
RTMC Road Transport Management Corporation
SABS South African Bureau of Standards
SADC South African Development Community
SANRAL South African National Roads Agency Limited
SPCA Society for the Prevention of Cruelty to Animals
TA Transport Authority
TDM Travel Demand Management
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APPENDIX 2
DEFINITIONS
Unless otherwise stated, the following phrases and words in this policy discussion document shall
mean the following:
“animal” - a horse, an ox, a mule, pony, donkey, or other hoofed animal that shall be used as a pull,
push or pack animal for the purposes of this policy. Although in the developing countries a variety of
other animals can be included such as water buffalo, camels, ilamas etc for the purposes of this
document they shall be limited to the ones given.
“animal transportation” refers to a working animals that is used for transportation when it is not
pulling a vehicle or device, where human or/and goods ride directly on the working animal
“Animal-Drawn Vehicle” is a vehicle or device, using two or more wheels and drawn by one or more
working animals such horse, donkey, ox or mule, designed for transport.
“by-law” is issued under the laws of a province;
“carriage” all means of a wheeled form of cart pulled by an animal, covered or uncovered, and shall
include those that are capable of carrying passengers as well goods, can be used as agricultural
equipment or was once used as war vehicles;
“cart” is a vehicle or device, using two wheels and normally one horse, designed for transport;
“co-operative” a co-operative as defined in section 1 of the Co-operatives Act, 1981 (Act No. 91 of
1981);
“conscientization” a type of learning which is focused on perceiving and exposing social and political
contradictions. Conscientization also includes taking action against oppressive elements in one's life as
part of that learning;
“Department” means the Department of Transport in the national sphere of government;
“driver” may be different from the operator or owner as his or her responsibility may be to manoeuvre
such an animal or animal drawn transport even when he is not its owner, but is employed by the
operator or owner;
“framework” an outline for the structure within and the form according to which a plan, policy or
strategy is determined and developed;
“harness” has been used for many centuries for part of the collection of equipment known as
horse “tack”, essential in the domestic, military, and agrarian use of horses;
“hazard report” is used to identify and report hazards (in addition to accidents, injuries);
“integrated development plan” - the integrated development plan which, in terms of the Local
Government: Municipal Structures Act, 1998 (Act No. 117 of 1998), is to be prepared by a
municipality;
“land transport” - the movement of persons and goods on or across land by means of any conveyance
and through the use of any infrastructure and facilities in connection therewith;
“marginalised group” shall refer to women, the disabled, children, rural communities and the poor;
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“Non-Motorised Vehicle” is a vehicle or device that is not motorised;
“owner” and “operator” shall refer to the person who is registered as such by the Transport Authority
or the responsible officer;
“packing” s the carrying of goods by animals on their back which is different for carriages and carting
referred to above;
“pedal cycle” any bicycle or tricycle designed for propulsion solely by means of human power;
“pedestrian” a person travelling on foot, whether walking or running. In some communities, those
travelling using roller skates, skateboards, and similar devices are also considered to be pedestrians.
This includes walkers who are assisted by a walking tool
“province” referred to in section 103 of the Constitution of the Republic of South Africa, 1996;
“provincial department” the department within the administration of a province that is charged with
public transport matters within the province;
“poor” shall refer to a group of people who live below the poverty datum lime as determined by
Statistics South Africa and shall refer to people in urban and rural settings;
“rider” shall be differentiated from a driver in that a rider may not need a driver license, the skill of
riding being transferred to him or her from others, but should such a rider wish to use animals for
ferrying people and goods on a public road, a license will be required;
“rural transportation” the movement of persons and goods for any conceivable purpose (including
collection of water or firewood), by any conceivable means (including walking and head loading) on
various types of infrastructure (including unproclaimed roads, tracks and footpaths);
“rural transport infrastructure” shall mean in addition to access roads, district roads, public transport
interchanges, tracks and other non-motorized transport infrastructure.
“small-wheeled transport” includes travel involving wheeled luggage, walkers, skates, skateboards,
push scooter, Segway, handcarts, wheel barrows and wagons. They are (mostly) a category of Non-
motorised Transportation. Wheeled luggage increases the amount of baggage that pedestrian can
reasonably carry and expands reasonable walking distances.